1\ 


LIBRARY 

Oh  THE 

UNIVERSITY  of  ILLINOIS 


V  ■  C 

E\  V  >\ 


THE  NEED  OF  A  CLASSIFIED  AND 
NON-PARTISAN  CENSUS 
BUREAU. 


Second  Report  of  the  Special  Investigating  Committee 


OF  THE 


national  Civil-Seivice  Reform  League. 


December,  1898. 


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THE  CENSUS  BUREAU. 


To  the  National  Civil  Service  Reform  League  : 

Your  Special  Investigating  Committee,  which  examined, 
among  other  things,  the  question  of  the  desirability  of  classify¬ 
ing  the  Census  Bureau,  begs  leave  to  report  t  s  follows : 

On  March  16th  last,  Senator  Chandler  introduced  a 
bill  for  taking  the  twelfth  and  every  subsequent  census. 
Section  3  of  the  bill  provided  that  the  employees  of  the 
Census  Bureau  should  be  appointed  according  to  the  provi¬ 
sions  of  the  Civil  Service  Act.  The  bill  was  referred  to  the 
Census  Committee,  and  when  it  was  reported  Section  3  was 
stricken  out,  and  a  provision  substituted  that  the  employees 
should  be  appointed  “  according  to  the  discretion  of  the  Di¬ 
rector  of  the  Census,  subject  to  such  examination  as  said 
Director  may  with  the  approval  of  the  Secretary  of  the  In¬ 
terior  prescribe,  and  not  otherwise.” 

The  purpose  of  the  Committee’s  substitute  is  to  repeat  the 
unfortunate  experience  of  the  last  census  in  making  the  clerks 
and  the  employees  of  the  office  subject  to  political  patronage. 
We  desire  to  call  attention  to  the  evils  which  have  resulted 
from  this  course,  in 

1st:  The  increased  extravagance  of  the  Bureau; 

2d :  The  demoralization  of  the  force  employed ; 

3d :  The  worthlessness  of  a  census  so  taken. 

4th:  The  lack  of  public  confidence  in  its  accuracy  and  im¬ 
partiality. 

I. 

The  last  census  cost  $10,620,000  (Cong.  Record,  Decem¬ 
ber  16,  1897,  page  214).  The  amount  paid  for  salaries  alone 
was  $5,120,000.  Mr.  Carroll  D.  Wright,  Chief  of  the  Depart¬ 
ment  of  Labor,  who  had  charge  of  the  last  Census  Bu- 


4 


reau  for  some  years  after  the  retirement  of  Mr.  Robert  P. 
Porter,  as  Superintendent,  estimates  that  two  million  dollars 
and  more  than  a  year’s  time  would  have  been  saved  if  the 
Census  force  had  been  brought  into  the  classified  service. 
(Letter  of  Carroll  D.  Wright  to  Henry  Cabot  Lodge,  Record 
of  December  16,  1897,  page  174.)  Mr.  Wright  adds:  “I  do 
not  hesitate  to  say  that  one-third  of  the  amount  expended  un¬ 
der  my  own  administration  was  absolutely  wasted,  and  wasted 
principally  on  account  of  the  fact  that  the  office  was  not  un¬ 
der  Civil  Service  rules.  ...  In  October,  1893,  when  I  took 
charge  of  the  Census  Office,  there  was  an  office  force  of  1,092. 
There  had  been  a  constant  reduction  for  many  months  and 
this  was  kept  up  without  cessation  till  the  close  of  the  census. 
There  was  never  a  month  after  October,  1893,  that  the  clerical 
force  reached  the  number  then  in  office ;  nevertheless,  while 
these  general  reductions  were  being  made  and  in  the  absence 
of  any  necessity  for  the  increase  of  the  force,  389  new  ap*- 
pointments  were  made.” 

That  is,  new  appointments  were  made  to  a  force  where 
they  were  not  needed,  the  new  men  replacing  experienced 
clerks,  and,  in  the  words  of  Senator  Lodge,  “  filling  the  office 
with  beginners  at  the  close  of  the  work.”  This  was  mani¬ 
festly  done  because  these  appointments  were  allowed  to  be  po¬ 
litical. 

Mr.  Porter  disputes  the  estimate  of  Mr.  Wright  that  the 
waste  was  as  much  as  two  million  dollars  from  this  cause 
alone.  But  whatever  the  precise  amount,  it  was  certainly 
very  large ;  so  large  that  it  is  the  manifest  duty  of  Congress 
to  see  that  it  does  not  occur  again. 


II. 

In  respect  to  the  demoralization  and  inefficiency  of  a  force 
selected  upon  the  patronage  plan,  Mr.  Porter  himself  now 
concedes  the  necessity  of  placing  the  Census  Bureau  in  the 
classified  service.  For,  in  his  article  in  the  North  American 
Review  of  December,  1897,  he  enumerates  among  the  faults 
of  the  present  system  the  following  : 


5 


“  Placing  upon  the  shoulders  of  the  Superintendent,  whose  mind 
should  be  fully  occupied  with  his  experts  in  planning  the  work,  the  re¬ 
sponsibility  of  the  appointment  of  an  office  force  of  several  thousand 
clerks.” 

Mr.  Porter  suggests  as  a  remedy : 

“  Making  the  Census  a  permanent  office  of  the  Government  and  ap¬ 
plying  to  it  precisely  the  same  rules  and  regulations  as  to  the  employ¬ 
ment  of  clerical  help  that  are  in  vogue  in  the  other  Departments.  If 
this  were  done,”  he  says,  “special  Civil  Service  examinations  might  be 
held  for  the  work  prior  to  the  time  the  clerk  would  be  needed,  and  the 
Census  Office  would  then  have  a  sufficiently  large  eligible  list  to  draw 
from.  In  1890  I  accepted  Civil  Service  examinations  of  the  higher 
grades,  but  that  did  not  do  away  with  the  necessity  of  examining  2,700 
clerks  in  the  office,  and  this  with  the  work  of  appointment,  literally  took 
up  all  the  time  of  the  Superintendent,  whose  mind  should  have  been 
free  for  his  purely  statistical  duties.  .  .  .  And  then  why  transform  the 
Census  Office  at  its  busiest  season  into  an  examination  department  for 
clerks,  and  the  Director  of  a  vast  scientific  investigation  into  a  dispenser 
of  political  patronage.  It  is  simply  unjust  to  such  an  official.  Having 
passed  through  the  ordeal  once,  I  am  satisfied  that  the  other  way  is  more 
practical  and  in  the  end  will  be  better  for  all  concerned.” 

This  declaration  of  Mr.  Porter’s  experience  is  timely,  if  it 
will  prevent  the  repetition  of  such  a  calamity. 

Congressmen  were  advised  systematically  of  the  number 
of  positions  at  their  disposal.  Mr.  Porter,  kept  regular 
books  of  account,  charging  each  of  the  Congressmen  with 
the  number  of  appointments  made  at  his  request.  Our 
Chairman  has  recently  examined  two  of  these  books.  I11 
one  of  them,  the  appointments  are  classified  according 
to  States,  and  in  another  they  are  charged  to  the  particular 
Congressman  who  solicited  them.  The  latter  book  is  a  ledger 
of  over  four  hundred  pages.  At  the  head  of  each  page 
appears  the  name  of  the  Congressman  charged  with  the 
appointments.  In  the  left  hand  column  are  the  numbers  of 
the  files  containing  the  recommendations  and  credentials. 
Then  follow  the  names  of  the  appointees,  and  then  the  grades 
and  salaries.  By  means  of  this  book  the  relative  rights  of 
members  of  Congress  could  be  adjusted,  and  it  could  be  seen 
at  a  glance  whether  any  particular  member  had  overdrawn  his 
account.  After  a  Congressman  retired,  the  clerks  appointed 
by  him  held  their  places  by  a  precarious  tenure,  and  frequently, 
perhaps  generally,  had  to  make  way  for  persons  appointed 


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and  protected  by  the  influence  of  his  successor,  or  some  other 
Congressman,  for  in  this  ledger,  following  the  accounts  kept 
with  existing  Congressmen  (a  page  to  each)  is  the  list  of  the 
appointees  of  ex-Congressmen  all  thrown  together,  as  though 
to  be  the  subjects  of  early  decapitation.  We  are  informed 
that  there  are  other  books  of  the  same  character  as  this  ledger, 
in  the  Census  Office,  covering  other  periods  of  time. 

It  would  be  hard  to  find  a  better  illustration  of  the  working 
of  the  patronage  system  than  is  presented  by  this  book,  where 
appointees  are  classified  as  in  a  live-stock  register  as  the  pro¬ 
perty  of  particular  Congressmen,  but  without  reference  to 
their  records  and  individual  qualifications.  We  frankly  and 
gladly  recognize  the  fact  that  there  are  members  of  Congress 
who  did  not  approve  this  debasing  system,  and  who  will  not 
now. 

Patronage  of  this  kind  does  not  secure  the  political  advantage 
which  is  supposed  to  be  its  object,  for  the  most  severe  defeat 
ever  sustained  by  the  party  then  in  power,  occurred  at  the 
close  of  the  very  year  that  these  appointments  were  parcelled 
out  among  the  representatives  of  that  party  in  Congress. 

Mr.  Porter  testified  that  the  appointees  were,  as  a  rule, 
recommended  by  Republicans.  This  rule,  however,  was  not 
universal.  There  were  Democrats  who  received  a  share  of 
the  appointments;  perhaps  where  their  votes  in  Congress 
were  serviceable  upon  appropriation  bills  or  otherwise.  With 
this  system  of  log-rolling  in  force  it  is  not  hard  to  understand 
how  the  enormous  appropriations  for  taking  the  last  census 
amounting  to  $10,620,000  were  secured.  Indeed,  Mr.  Porter 
stated  some  time  since  to  our  Chairman  that  if  he  had  it  to  do 
again,  he  would  select  his  clerks  by  Civil  Service  examinations, 
“  even  though  the  other  plan  had  greatly  smoothed  the  way  to 
the  passage  of  appropriations  and  other  friendly  legislation. ” 

The  plain  English  in  regard  to  such  transactions  is  that 
such  legislation  was  bought  with  offices,  and  that  the  salaries 
of  these  offices  were  paid  for  out  of  the  people’s  money.  It 
was  the  people’s  money  which  paid  for  the  keeping  of  the  very 
books  in  which  these  transactions  were  recorded.  Under  such 
a  system  extravagance  was  a  necessary  result. 

What  was  the  character  of  the  service  under  this  patronage 
system  ?  Shortly  before  Mr.  Wright  took  charge  of  the  Bureau 


7 


a  large  number  of  discharges  of  those  then  holding  positions 
were  made,  on  account  of  their  lack,  not  only  of  ability,  but  of 
moral  character.  Doubtless  there  were  many  excellent  persons 
who  secured  employment  by  patronage  methods,  but  it  was  in 
spite  of  this  system  of  barter  and  corruption,  by  which  the  places 
in  this  Bureau  were  filled.  U nder  the  competitive  system  it  is  at 
least  impossible  that  applicants  will  get  their  places  because  of 
corruption  or  immorality.  When  appointed  through  favoritism 
this  is  not  seldom  the  very  reason  for  their  appointment.  More¬ 
over,  when  a  clerk  or  other  employee  owed  his  place  to  the  favor 
of  some  Congressman,  his  loyalty  was  considered  to  be  due,  not 
so  much  to  the  Chief  of  the  Bureau  and  to  the  public,  as  to 
the  particular  “  influence  ”  which  secured  the  place.  Remov¬ 
als  from  the  Census  Bureau  even  for  just  cause  became  diffi¬ 
cult,  therefore,  and  often  impossible.  Persons  dismissed  for 
inefficiency  or  misconduct,  were  actually  reinstated  against 
the  will  of  the  Chief  of  the  Bureau  himself,  at  the  demand  of 
some  political  friend,  too  powerful  to  be  offended. 

If  the  Census  Bureau  is  not  now  put  under  a  strict  system 
of  competitive  examinations,  the  effect  of  the  elections  in  1900 
must  also  be  considered.  Hardly  will  the  Bureau  have  been 
put  in  running  order  before  the  campaign  will  have  begun, 
and  if  the  spoils  system  prevails  the  whole  force  will  be  affected 
by  the  political  turmoil,  connected  first  with  the  nominations 
for  Congressmen  and  President,  and  then  with  the  elections. 
Wherever  the  “ influence”  of  the  employee  is  defeated  the 
employee  himself  will  be  discharged,  while  if  a  change  of  party 
ensures  the  whole  Bureau  will  have  to  be  reconstructed  with 
untrained  material  at  the  m  ost  critical  period  of  its  work. 


III. 

The  lamentable  results  of  the  patronage  system  are  shown 
in  the  defective  enumeration  of  inhabitants  made  in  the  last 
census.  As  a  rule,  the  supervisors  were  chosen  for  political 
reasons,  and  the  supervisors  selected  the  enumerators.  True, 
it  was  provided  by  law  (Section  4,  Act  of  March  6,  ’89)  that 
the  enumerators  should  be  chosen  for  fitness  and  without  refer¬ 
ence  to  party  affiliations,  but  this  became  impossible  when  the 


8 


supervisors  were  chosen  for  political  reasons.  The  enumer¬ 
ation  was  perverted  in  many  places  into  an  information  bureau 
for  party  candidates. 

The  supervisor  at  Buffalo,  New  York,  addressed  the  fol¬ 
lowing  circular  letter  to  his  enumerators: 

“October  28,  1890. 

“As  it  is  of  the  utmost  importance  that  a  Republican  member  of 
Congress  be  elected  in  this  district,  I  shall  feel  personally  obliged  if  on 
the  day  of  election  you  will  work  especially  for  Benjamin  H.  Williams, 
the  Republican  candidate. 

[Signed]  Silas  H.  Douglas.” 

In  Geneva,  New  York,  Congressman  Raines  secured  the 
appointment  of  enumerators  with  the  view  of  enhancing  his 
political  fortunes.  He  addressed  to  one  of  them,  and  probably 
to  many  others,  the  following  letter: 

“  My  Dear  Sir  : — As  it  »s  quite  likely  that  you  will  in  a  few  days 
be  appointed  enumerator  for  your  district,  I  write  you  this  in  the  strictest 
confidence.  I  would  like  very  much  that  you  should  take  the  trouble, 
before  you  make  your  report  to  the  Supervisor  of  the  Census,  and  after 
you  have  taken  all  the  names  in  your  district,  to  copy  in  a  small  book 
the  name  and  post  office  address  of  every  voter  on  the  list.  After  you 
have  done  so,  I  wish  you  to  send  the  book  to  me  at  Canandaigua.  I  ask 
you  to  do  this  as  a  personal  favor,  and  to  make  no  mention  of  the  mat¬ 
ter  to  anyone.  What  I  want  is  a  full  list  of  all  the  voters  in  your 
enumeration  district.  Will  you  please  treat  this  matter  as  strictly  con¬ 
fidential  ? 

“  Very  truly  yours, 

[Signed]  J.  Raines.” 

Mr.  Raines  stated  to  our  Chairman  that  he  had  sent  this 
letter  in  ignorance  of  the  law,  which  required  enumerators  to 
keep  secret  the  results  of  the  enumeration.  In  many  other 
cases,  for  instance,  at  Bloomington,  Indiana,  enumerators  were 
chosen  on  the  recommendation  of  the  chairman  of  the  Repub¬ 
lican  County  Committee,  and  made  poll  lists  for  the  Repub¬ 
lican  party. 

The  evils  of  patronage  were  clearly  apparent  in  New  York 
city.  Charles  H.  Murray  was  made  Supervisor  of  the  Census. 
He  wrote  the  following  circular  letter  which  shows  his  man¬ 
ner  of  selecting  enumerators. 


9 


“  Dear  Sir  : — You  will  please  forward  to  this  office  a  list  of  the  appli¬ 
cants  that  the  Republican  organization  of  your  district  desires  to  have 
named  as  Census  enumerators.  The  list  must  be  sent  here  on  or  before 
April  ist.” 

General  Walker  who  took  the  Ninth  and  Tenth  Census 
says  :  “  If  the  selection  of  the  enumerators  was  made  upon 

any  such  basis  as  that,  the  census  could  not  have  been  other¬ 
wise  than  bad.”  Many  of  the  men  thus  appointed  were 
utterly  unfit.  The  Police  Inspector  named  one,  a  thief,  who 
had  been  three  times  an  inmate  of  the  State  Prison,  a  man 
whose  name  was  known  to  all  the  city  detectives,  whose 
picture  was  then  in  the  Rogues’  Gallery,  and  whose  dealings 
with  the  Census  Bureau  were  under  an  alias ;  yet  private 
houses  were  opened  to  him  under  Government  endorsement. 

New  York  was  a  Democratic  city,  and  there  was  strong 
reason  for  believing  that  the  count  had  been  defective.  The 
Police  Department  re-counted  the  city  and  found  the  population 
two  hundred  thousand  greater  than  that  showed  by  the  federal 
census.  The  police  count  was  sent  to  Washington  where  Mr. 
Kenney,  its  custodian,  offered  it  for  comparison  with  the 
census  enumeration  and  a  recount  was  asked,  but  refused. 
Then  a  copy  of  the  federal  census  for  the  Second  Ward  was 
procured  and  compared  with  the  police  enumeration.  The 
federal  list  contained  826  names,  and  the  police  enumeration 
1,340  names, — a  difference  of  45  per  cent.  Affidavits  were 
furnished  showing  the  residence  of  328  persons  not  enumer¬ 
ated  in  the  federal  census.  Our  Chairman  inspected  the 
police  enumeration,  as  well  as  the  federal  census,  and  a  com¬ 
parison  of  the  two  lists,  followed  by  a  personal  investigation 
in  the  Ward,  indicated  that  great  numbers  of  the  residents  of 
this  ward  were  omitted  in  the  census.  There  can  be  no  doubt 
but  that  many  thousands  of  inhabitants  of  New  York  were 
omitted  from  the  census,  and  the  patronage  system  was 
directly  responsible  for  these  omissions. 

One  of  those  engaged  in  the  taking  of  this  census  thus 
describes  some  of  the  facts  which  came  under  his  personal 
observation : 

“  In  a  section  consisting  at  one  time  of  twenty-one  people 
who  were  engaged  in  the  mailing  department  of  the  office, 


IO 


addressing  envelopes,  mailing  bulletins,  and  other  duties  inci¬ 
dent  to  the  mailing  department,  there  were  only  four  people, 
other  than  the  chief  of  the  section,  who  were  available  for 
any  character  of  work  whatsoever.  Three  clerks  were  abso¬ 
lutely  demented;  they  were,  by  reason  of  being  maimed/ 
wholly  unfit  to  be  of  any  service ;  two  by  reason  of  disease 
(consumption),  were  valueless ;  two,  being  sons  of  chiefs  of 
division  in  the  office  with  a  “  pull,”  were  immune ;  the  other 
six  were  wholly  worthless  by  reason  of  age  or  disinclination. 

It  is  but  fair  to  say  that  this  condition  did  not  last  throughout 
the  period  of  the  taking  of  the  census.  The  larger  number  of 
these  people,  however,  served  more  than  two  years,  and  several 
of  them  for  a  much  longer  period.  It  would  seem  that  this 
particular  section  was  the  Botany  Bay  of  the  Eleventh  Census, 
but  the  same  state  of  affairs  existed  in  a  lesser  degree  through¬ 
out  the  office.  It  needs  no  argument  to  convince  one  that 
this  state  of  affairs  could  not  exist  under  the  ‘  merit  ’  system 
estabtished  under  the  civil  service  act  and  rules.  Being  ap¬ 
pointed  as  skilled  laborers,  these  people  were  not  required  to 
take  an  examination,  although  doing  clerical  work. 

Another  feature  of  the  work  of  the  Eleventh  Census 
which  makes  clear  to  my  mind  that  the  next  force  should  be 
selected  from  those  who  pass  a  competitive  civil  service  ex¬ 
amination  was  the  exceedingly  large  percentage  of  errors 
made,  particularly  in  the  punching  of  cards.  All  of  the  data 
relating  to  the  census  were  transferred  from  the  original  sched¬ 
ules  to  cards,  each  hole  punched  in  a  card  representing  some 
material  fact,  such  as  4  native  born,’  4  foreign  parents,’ 

4  white  or  colored,’  etc.,  etc.,  in  some  cases  as  many  as  thirty 
or  forty  facts  being  indicated  by  punches  on  a  single  card. 

The  symbol  representing  each  condition  or  fact  must  be  car¬ 
ried  in  mind,  or  else  the  progress  of  punching  the  cards  would 
be  so  retarded  as  to  make  the  electrical  punching  machines 
of  little  value.  I  think  it  will  be  readily  conceded  that  a 
clerk  doing  this  character  of  work  should  be  a  person  of  good  ' 

mind  as  well  as  a  skilled  clerk. 

There  was  at  all  times  a  4  Division  of  Revision  and  Re¬ 
sults  ’  in  the  office,  consisting  of  a  chief  and  from  thirty  to 
seventy  of  the  best  clerks  obtainable.  Notwithstanding  this  v 

check  upon  error,  it  was  found  necessary  to  establish  a  section 


of  about  seventy  people  to  look  after  the  errors  of  punching 
cards  alone.  Here  we  find  as  many  as  one  hundred  and  forty 
people  whose  time  was  wholly  devoted  to  correcting  faulty 
work.  Errors,  of  course,  would  unavoidably  creep  into  a 
work  of  the  magnitude  of  the  Eleventh  Census,  but  I  believe 
that  a  careful  selection  of  the  clerks  under  the  rules  of  the 
Civil  Service  Commission  would  have  tended  to  minimize 
their  number.  Notwithstanding  the  ‘  Revision’  division  and 
the  ‘  h)rror  ’  section  before  spokenof,  it  was  found  at  the  very 
last  moment  before  the  publication  of  the  final  results  that  the 
work  was  so  inaccurate  that  the  portion  of  it  relating  to  occu¬ 
pations  (see  report  of  Commissioner  of  Labor,  in  charge  of 
Eleventh  Census,  June  30,  1895,  pp.  4,  5)  had  to  be  subjected 
to  still  another  revision,  which  delayed  its  publication  for 
more  than  a  year.  The  expense  incident  to  this  was  great, 
owing  to  the  fact  that  all  other  census  work  had  been  com¬ 
pleted,  and  the  office  remained  open  only  to  complete  that 
section  of  the  report  on  ‘  Population,  and  Vital  Statistics  Re¬ 
lating  to  Occupation/ 

Considerable  stress  is  laid  upon  the  fact  that  examinations 
were  held  in  the  office  to  test  the  fitness  of  clerks  before  they 
were  employed.  I  beg  to  suggest  that  the  highest  number 
of  clerks  employed  at  any  time  numbered  about  3,200.  Of 
these,  only  about  1,700  were  examined.  The  larger  part  of 
the  working  force  of  the  office  was,  in  point  of  fact,  never 
subjected  to  an  entrance  examination.  Only  the  high-grade 
clerks,  namely,  those  from  $900  per  annum  up,  were  required 
to  pass  the  entrance  examination.  It  can  be  readily  shown, 
as  I  suggested  above,  that  the  greater  part  of  the  clerical 
work  was  performed  by  what  were  termed  ‘  skilled  laborers/ 
who  received  $600  per  annum  only,  and  were  exempt  from 
examination.” 


IV. 

The  census  ought  to  be  as  free  from  partisan  color  as  the 
Judiciary.  Otherwise,  no  one  can  rely  upon  the  accuracy  of 
its  conclusions.  To  gain  the  confidence  of  the  people,  it  ought 
to  be  not  merely  fair  and  just,  but  free  from  even  the  appear¬ 
ance  of  corrupt  or  partisan  influence. 


12 


If  the  government  has  a  free  choice  between  a  non-po¬ 
litical  and  a  political  agency  for  taking  this  enumeration, 
and  chooses  the  latter,  composed  of  officials  of  its  own  politi¬ 
cal  faith,  the  presumption  is  against  the  fairness  of  a  census 
so  taken.  And  even  if  it  were  fair,  many  would  not  believe 
it  to  be  fair.  Suspicion  is  cast  on  such  a  census  in  advance 
of  enumeration ;  and  if,  at  the  close  of  the  work,  inaccuracies 
are  shown,  resulting  in  some  cases  in  advantage  to  the  party 
by  which  it  is  taken,  the  work  is  sure  to  be  discredited. 

All  of  which  is  respectfully  submitted  with  the  recommen¬ 
dation  that  the  efforts  of  the  League  be  directed  immediately 
toward  gaining  the  support  of  the  country  and  of  Congress 
for  the  classification  of  the  Census  Bureau  under  the  civil 
service  rules. 

(Signed)  Wm.  Dudley  Foulke, 

Chairman. 

Charles  J.  Bonaparte. 

Richard  H.  Dana. 

Herbert  Welsh. 

George  McAneny. 

Baltimore,  December  15,  1898. 


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